Wirral Housing Density Study Interim Report 2019
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Density and design study Stages 1 and 2: Summary report Wirral Local Plan December 2019[ 1 Project name and number: 19-027: Wirral Local Plan Document name and revision: 19-027_rpt_001_V4_Stage 1&2 Prepared by: BP/JG Reviewed by: JP/BP/MW/JHB/AF Proof: HS Date of issue: 24th December 2019 Urban Imprint Limited | Company number 8059162 | Registered in England and Wales Registered Office | 82 Reddish Road | Stockport | SK5 7QU 2 Contents 1. Executive summary Introduction and context 2. Purpose of the overall study 3. Wirral context 4. Simplified methodology and focus for this study Stage 1 - The current approach to density 5. National policy and the attitude towards densification and intensification 6. The existing policy approach to density in Wirral 7. The track record for delivering higher densities in Wirral Stage 2: Best practices approach to density 8. Other policy approaches to density 9. Design guidance and density Conclusions and recommendations 10. Conclusions 11. Recommendations and next steps 12. Appendix 1: Wirral previous policy approach 14. Appendix 2: AMR analysis Executive summary 1. Executive summary Planning Policy Framework approach to making efficient use of land. This report summarises the approach and Stage 2 then looks to identify key lessons from findings of stages 1 and 2 of work undertaken existing UK policies which have been by Urban Imprint and Arup on density and developed to introduce higher densities. In design in Wirral. Stages 1 and 2 seek to many cases these are based around the review the current policy position and principles of Transit Oriented Development to approach to housing density in Wirral as well identify the preferred approach to as that taken elsewhere. It therefore sets the ‘densification’ and increasing residential broad context for the general approach to densities. Policies which support both density in the emerging Wirral Local Plan. minimum density standards and ‘suburban densification’ have been examined and have This report first sets out the purpose of the been adopted by many authorities across the study and the methodologies used to set this country; however, some local authorities have context. It also presents findings from retained a more conservative approach to the indicators including the Council’s annual provision of increased density. statutory Monitoring Reports (AMR); recent past planning permissions and analysis; and What is clear from this work is that a step existing policies within the existing Unitary change in the policy approach to be set out in Development Plan for Wirral. Collectively the new Local Plan will be necessary to these form the baseline conditions for the ensure that the aspirations of national policy consideration of future density and design are achieved. The policies studied show policies to be included in the emerging Local clearly that land made available by the Plan Plan for Wirral. can be used more efficiently to deliver higher densities and overall numbers. What the The aim of stage 1 of this work is to establish studies also show is that specific densification the current approach to delivering (or policies, focused around possible identified managing) housing density in Wirral, as well density zones could be delivered, to ensure as the context which seeks policies which that effective and efficient use is also made of introduce higher residential densities. It finds small and medium sites within the urban area. that traditionally Wirral Council has taken a fairly conservative approach to density, The report concludes by setting out the including a restrictive approach within some recommended approach for stages 3 and 4 of existing low density areas, requiring limited this workstream which seek to identify specific densities in identified geographical areas. locations for higher density and provide worked examples of how this could be However, in recent years this trend has implemented in practice using local case changed, with higher densities proposed at studies. the Wirral Waters site as well as being more common for a number of small and medium- sized sites that have been granted planning permission. This approach is in part supported by the National Design Guide and the National 4 Introduction and context Introduction and context Introduction and context 2. Purpose of the overall study when assessing how densities can be increased across Wirral. Overall, this study seeks to identify The National Design Guide (published in appropriate broad locations and a policy 2019) provides guidance on how density approach for increasing housing density. A should respond to its context, placing key focus is on making the most of existing particular emphasis on accessibility, proposed previously developed areas and those with building types and local character. Walkability good access to services and facilities. and access to services are encouraged through the design of compact forms of Neither time nor resources exist to assess the development, citing an 800m radius (10- ability of the entire Borough to accommodate minute walk) as an appropriate walking higher densities, nor would this approach be distance to local facilities. The document also in line with the way planning decisions are provides a series of good practice examples made against national policy context. It is where high densities have been achieved therefore logical to utilise a best practice urban without compromising liveability and quality of design and transit orientated approach to place. hone in on those areas most able to accommodate higher densities, and to focus This density study relies on a wide range of upon how this might be done more effectively. evidence to ensure that it is based on best Overall, the aim of the study is to locate practice and sound urban design principles. development in sustainable locations and to This baseline part of the study reviews the explore ways in which urban intensification Borough’s historic approach to design, density and higher densities can maximise the and amenity in conjunction with an analysis of potential that any new residential best practice examples of how other development provides. This study will help authorities have increased densities, both shape the policy-led approach that will from a design-led and policy-based achieve this aim through the Wirral Local Plan. perspective. These also provide examples of how related considerations such as design The National Planning Policy Framework and amenity can be balanced with increased (hereinafter known as the ‘Framework’) places density. a strong emphasis upon achieving appropriate densities and making efficient use of land The eventual aim of this study will identify a (paragraph 122). Ensuring that optimal use is series of categories within which different made of available sites is considered types of densification will be appropriate. particularly relevant when there has been a These will be referred to as ‘density zones’ shortfall in meeting identified housing need or and will enable land to be categorised where areas are particularly constrained. The according to its proximity to transit stops, Framework refers to a balance existing services and facilities. The density appropriate between efficient use of land and the in each category of density zone will vary importance of maintaining high standards of depending on the characteristics of the design in development. This study therefore geographical area involved. For example, a has sound urban design principles at its heart higher density will be more appropriate on land within existing settlements compared to areas on the periphery of settlements. This Introduction and context analysis will be map-based using existing GIS 3. Wirral context datasets relating to the location of key services and facilities such as railway and bus stops, in addition to constraints such as In order to understand the approach taken environmental designations and protections towards density and densification in Wirral, and opportunities provided by assets such as and then to make recommendations for public open spaces and recreation facilities. change, where appropriate, it is important that current planning and development context in In conjunction with data from the 2019 Wirral is appreciated. Strategic Housing Land Availability Assessment (SHLAA), Annual Monitoring The current identified local housing need for Report (AMR), and consultation under Wirral is (November 2019) 800 dwellings per Regulation 18, the outcome of the study will annum, equivalent to some 12,000 new be a recommendation on how and where homes over the Plan period, which is higher urban densification may take place and how than previous average delivery. Whilst a good policy should be formulated to ensure a deal of Wirral is within existing urban areas, all design-led approach. the land outside this is within the Green Belt. This places a strong requirement to ensure that all possible opportunities are utilised for delivering housing growth within existing urban areas. There are some notable differences in character between the three areas of the Borough: 1. the principal urban areas of Birkenhead, 2. the urban areas to the east of Wirral, arranged along the main transport routes, and 3. the larger urban settlements to the west which have the character of large villages. Traditionally, many of these have a suburban character, with many communities being built to a medium-low density comprising either late Victorian townhouses or villas arranged along the railway